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The Banking Ordinance is the basis of the legal framework governing the banking
sector. The Bank Advisory Committee, which is composed of members of
public-sector and private financial institutions, advises government authorities
on issues concerning the Banking Ordinance.
The
Banking Ordinance was amended in 1986 to authorize the Commissioner of Banking
to regulate the banking sector, set minimum capital standards, and limit loans
to customers and bank employees. Amendments to the Ordinance in 1995 gave the
HKMA broader powers, including responsibility for all matters pertaining to the
authorization of banks. The HKMA can suspend or revoke the license of a bank
found to be in violation of regulations designed to protect the safety and
soundness of the financial system. It is also authorized, after consultation
with the Financial Secretary of Hong Kong, to take over a financial institution
that is unable to make payments or if it is deemed in the public interest to
take control of the firm.
There
is a three-tier banking system of "authorized institutions" in Hong
Kong: licensed banks, restricted-license banks, or deposit-taking companies.
Only licensed banks are permitted to accept deposits of any size and maturity
and to offer checking and savings accounts. They effectively function as
commercial banks. Restricted-license banks are limited to accepting deposits of
more than HK$500,000 and thus offer investment banking services. Deposit-taking
companies are only authorized to accept deposits over HK$100,000 that have an
initial maturity of at least three months. Hong Kong adheres to the Basle
principles for bank supervision.
The
approach is one of ongoing supervision and includes on-site reviews of
operations and financial records and off-site reviews of financial statements
and reports. Banks are required to be incorporated and publish detailed audit
reports as well as monthly returns showing assets and liabilities. In addition
to information on their balance sheet and quality of assets, banks are required
to disclose inner reserves, realized profits, and net assets. Authorities meet
annually with internal and external auditors to review each institution’s
audit and determine if the institution is in compliance with prudential
standards and the Banking Ordinance. The Banking Ordinance, in turn, provides a
legal basis for enforcing the Basle standards. Violation of the Banking
Ordinance is punishable by fines, imprisonment, or both.
The
Banking Ordinance restricts the use of the word "bank" to those
institutions that are either licensed or restricted-license banks. In the latter
case, the word "bank" must be accompanied by either
"merchant" or "investment." Only a "fit and proper
person" can be issued a banking license, and there exist controls regarding
the ownership and management of an authorized financial institution. An
authorized institution is required to inform the HKMA if it makes changes to any
documents that outline the institution’s procedures. Approval is also required
before there can be any changes in a bank’s ownership.
The
Banking Ordinance also sets forth minimum capital requirements for authorized
institutions. Locally incorporated banks must have paid-in capital equal to
US$388 million and net assets of US$518 million dollars for authorization to
operate a licensed bank. Applicants for a restricted-license bank must have
paid-in capital equal to US$12.8 million.
Authorized
institutions are not permitted to lend more than 25 percent of their capital
base to a single customer or group of related customers, nor are they allowed to
hold more than 25 percent of shares in other companies. No more than 10 percent
of an authorized institution’s capital base may be used for unsecured loans.
The
HKMA adopted BIS capital-adequacy guidelines in 1989. The minimum standard
according to BIS recommendations is a capital-adequacy ratio of 8 percent. The
national requirement in Hong Kong is also 8 percent, although some banks are
required to maintain 12 percent and some nonbanks at least 16 percent. The
actual risk-based capital-adequacy ratio at the end of 1995 was 17.5 percent. In
December 1996, the HKMA implemented reporting requirements that direct banks to
address market risk in calculating their capital-adequacy ratio.
Foreign-owned
commercial banks can enter the Hong Kong banking industry by establishing a
branch or by acquiring ownership of a local bank. Foreign-owned firms must apply
for a license to enter the financial services market. License approval is
subject to four criteria: foreign-owned firms must (1) have net assets of US$16
billion, (2) be incorporated in a country that applies the Basle principles for
bank supervision, (3) have approval from their home country to operate a branch
in Hong Kong, and (4) come from a country that offers reciprocal access to Hong
Kong banks. Of the 366 banks in Hong Kong in February 1997, 333 were owned by
foreign interests. Overseas incorporated banks hold 78 percent of the
country’s banking assets, and bank deposits denominated in foreign currency
represent 56 percent of total bank deposits.
Hong
Kong does maintain restrictions on the number of branches that foreign banks are
permitted to operate. In 1994, authorities relaxed the one-branch limit for
foreign banks, allowing them to open one additional office in a separate
building from the location of their main branch; however, the additional office
is to be used only for "back office" functions such as processing and
settling transactions conducted in the main branch office.
Fully licensed banks
(commercial banks) are allowed to establish operations in Hong Kong only as a
bank branch. Restricted-license banks (investment banks) are permitted to open
branches or subsidiaries. Licenses for deposit-taking companies are extended
only to locally incorporated subsidiaries.
In
the light of China's accession to the WTO, in December 2001 the Hong Kong
Monetary Authority announced that it intended to scrap the US$16 billion minimum
asset requirement for foreign banks, bringing the amount needed down to HK$5
billion, in line with the requirements for local institutions. As well as
encouraging foreign financial institutions to put down roots in the SAR, the
authorities hope that this move will encourage the mainland to reduce its
minimum asset requirements - currently set at US$16 billion - which would make
it easier for Hong Kong banks to establish there.
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